INTHEUNITEDSTATESDISTRICTCOURTFORTHEDISTRICTOFNEWMEXICO

DINCITIZENSAGAINSTRUININGOURENVIRONMENT,SANJUANCITIZENSALLIANCE,WILDEARTHGUARDIANS,andNATURALRESOURCESDEFENSECOUNCIL,

Plaintiffs,v.

SALLYJEWELL,inherofficialcapacityasSecretaryoftheUnitedStatesDepartmentoftheInterior,UNITEDSTATESBUREAUOFLANDMANAGEMENT,anagencywithintheUnitedStatesDepartmentoftheInterior,andNEILKORNZE,inhisofficialcapacityasDirectoroftheUnitedStatesBureauofLandManagement,

Defendants.))) CaseNo.__________))) PETITIONFORREVIEWOF) AGENCYACTION))))))))))))__________________________________________)

INTRODUCTION

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1. PlaintiffsDinCitizensAgainstRuiningOurEnvironment,SanJuanCitizens

Alliance,WildEarthGuardians,andNaturalResourcesDefenseCouncil(collectively,Citizen

Groups)bringthisactionfordeclaratoryandinjunctiverelieftochallengetheUnitedStates

BureauofLandManagement,etal.s,(BLM)decisionstoapproveapplicationsforpermitto

drill(APDs)intotheMancosShale/Gallupformations(MancosShale)inaccordwiththe

AdministrativeProcedureAct(APA),5U.S.C.701etseq.,forviolationsoftheNational

EnvironmentalPolicyAct(NEPA),42U.S.C.4321etseq.,andtheNationalHistoric

PreservationAct(NHPA),16U.S.C.470etseq.WhileBLMsdecisionsare,individually,

problematic,theyalsoevidenceanegregiouspatternandpracticeofapprovingindividual

drillingpermitsintotheMancosShalethroughpiecemeal,boilerplateenvironmentalassessments

(EAs).Plaintiffsthereforealsochallenge,inaccordwiththeAPA,BLMspatternandpractice

ofapprovingindividualdrillingpermitsforviolatingthefundamentalrequirementsofNEPAand

theNHPA.

2. BLMspiecemealapprovalofdrillingpermitsisproblematicgiventhepracticeof

hydraulicfracturing,orfracking,thatisusedinandenablesthedrillingofoilandgaswells

targetingMancosShale.TheagencyhasrecognizedthatthecurrentResourceManagementPlan

andFinalEnvironmentalImpactStatement(2003RMP/EIS)neveranticipatedoranalyzedthe

impactsofthetypeofhorizontalfrackingtechnologynecessaryfordevelopingMancosShale,

which,inturn,requiresanEISlevelplanamendmentforcompleteanalysis.BLMis,onthis

basis,preparinganRMPAmendmentandEISforhorizontaldrillingandfrackingintheMancos

Shale(MancosRMPA/EIS)toanalyzetheimpactsofdevelopingMancosShalethathavethus

farbeenignored.Nevertheless,BLMhasbegunfullscaledevelopmentofMancosShaleandhas

PAGE3of46

authorizedatleast130individualdrillingpermitsforextractionofcrudeoilbypurportingtotier

totheinoperative2003RMP/EIS.

3. HorizontaldrillingandmultistagefrackingoftheMancosShaleimplicateoiland

gasdevelopmentimpactsthatareverydifferentinbothkindandintensityfrompreviously

employeddrillingtechniquesintheSanJuanBasin.Moreover,horizontaldrillingandmulti

stagefrackinghavealteredtheeconomicsofdrilling,makingit,intheMancosShale,possiblein

thefirstplaceoratleastintensifyingthescaleofreasonablyforeseeabledevelopment.

Fundamentally,thereisgreatriskofsignificantenvironmentalandpublichealthimpactscaused

byhydraulicfrackingandtheintensityofdevelopmentthatsuchfrackingenables,includingthe

contaminationofsurfaceandgroundwatersupplies,theemissionofhazardousairpollutantsand

potentgreenhousegases,aswellasthepotentialtothreatentheareasrichculturalresources.

4. TheSanJuanBasininnorthwesternNewMexicoencompassesoneoftherichest

andmostextensiveprehistoricNativeAmericancommunities,comprisingmorethan100Great

Housesthelargestalonecontainingmorethan400roomstogetherconnectedbyhundredsof

milesofancientceremonialroads.Atthecenterofthis40,000squaremilearealiewell

preserved,thousandyearoldstandingmasonrystructureslocatedintheChacoCultureNational

HistoricalPark,aUnitedNationsWorldHeritageSite.WhiletheChacoCultureNational

HistoricalParkrepresenttheheartoftheseprehistoriccommunities,numerousmasonryGreat

Housesandtheirassociatedculturalsites,aswellasmostoftheancientceremonialroads,lie

welloutsidetheParksboundaries,underscoringtheBasinsbroaderculturalheritage.

5. ThisGreaterChacoAreaisalsohometocontemporary,livingNavajoandother

communitiesthathavebeenheavilyimpactedformorethanacenturybyfederaldevelopmentof

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uranium,coal,oil,andgas.Aslongagoasthe1970s,aNationalAcademyofSciencesreport

dubbedthisareaanditspeopleasanationalenergysacrificezone.Coal,oil,andgas

exploitationisrampantandhasleftaheavyfootprintonthisarid,culturallyrichlandscape.

6. Theareaisalsohometouniquegeology,stunninglandscapes,anddiverseplant

andanimallife,muchofthisonpubliclands.Theseresourcesarethereforehighlyvaluedfrom

anecologicalandnaturalresourceperspective.Thatsaid,contemporarynativecommunities

utilizethistreasuredlandscapeforceremonialandspiritualpractices,andregardtheentire

ancestrallandscapeasculturallysignificant.Indeed,itistheintertwinedecologicalandcultural

aspectsoftheareathatgiverisetoastarkclashbetweentheland,water,air,andpeoplesofthe

SanJuanBasinwithpast,present,andreasonablyforeseeableoilandgasdevelopment.

7. BLMhasbeenlessthantransparentinprovidingthepublicwithadequate

informationtoassessorcommentontheapprovalofMancosShalefrackingpermits.Tothebest

oftheCitizensGroupsknowledge,BLMhasapprovedatleast130APDsthatauthorize

horizontaldrillingandfrackingandassociatedinfrastructureintheMancosShale.Theagency

has,however,notprovidedinformationnecessarytodeterminethenumberofapprovedAPDs

thathavethusfarresultedingrounddisturbingactivity.

8. BLMsapprovalofdrillingpermitsintheBasinandtheagencysconsequent

violationsofNEPAandtheNHPAarepremisedonseveralagencytransgressionsincludingthe

agencysfailureto:

a. CompletetheMancosRMPA/EISpriortoauthorizingdrillingpermits

targetingMancosShale,orSupplementthe2003RMP/EISbasedon

significantnewcircumstancesandinformation

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b. PrepareanEISorprovideaconvincingstatementofreasonstojustifyits

decisiontoforegoanEISpriortoauthorizingnumerousdrillingpermits

targetingtheMancosShale

c. Takeahardlookatthedirect,indirect,andcumulativeimpactsof

developingtheMancosShaleand

d. ConsultwiththeNewMexicoStateHistoricPreservationOfficerandthe

publicovertheimpactsoffrackingonhistoricandculturalproperties.

9. Further,BLMsAPDapprovalsunlawfullyprejudiceandlimitthechoiceof

alternativesfortheagencyspendingrevisiontheMancosRMPA/EIS.Byapprovingthe

constructionofdrillinginfrastructurewithintheSanJuanBasin,BLMprejudicesandlimitsthe

efficacyofmitigationmeasures,includingcontrolsonthetiming,pace,andlocationof

development,toprotecttheBasinsecologicalandculturalresources,aswellascontrolsthat

ameliorateclimate,air,water,andpublichealthimpacts.

10. CitizenGroupsseekdeclaratoryreliefagainsttheBLMinaccordwiththeAPA

fortheirunlawfulapprovalof,andunlawfulpatternandpracticeofapproving,drillingpermits

targetingtheMancosShaleinviolationofNEPAandtheNHPA,andthosestatutes

implementingregulationsandpolicies,asallegedherein.CitizenGroupsalsoseekinjunctive

reliefprohibiting,pendingcompletionoftheMancosShaleRMPA/EIS:

a. DevelopmentofapprovedAPDstargetingMancosShaleforthosepermitswhere

grounddisturbingactivityhasnotyetcommenced

b. DevelopmentofapprovedAPDsthathavebeendrilledandshutinbutnotyet

completed

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c. Approvalofnewwellsandoilandgasdevelopmentinfrastructuretargetingor

enablingMancosShaledevelopmentand

d. OthersuchreliefthattheCitizenGroupsseektoprotectagainstoilandgas

developmentimpacts.

11. Iftheyprevail,CitizenGroupswillseekanawardofattorneysfees,costs,and

otherexpensespursuanttotheEqualAccesstoJusticeAct,28U.S.C.2412.

JURISDICTION&VENUE

12. JurisdictionisproperinthisCourtpursuantto28U.S.C.1331becausethiscivil

actionarisesunderthelawsoftheUnitedStates.

13. Thisactionreflectsanactual,present,andjusticiablecontroversybetweenthe

CitizenGroupsandtheFederalDefendantstheCitizenGroupsandtheirmemberswillsuffer

adverseandirreparableinjuriesinfacttotheirlegallyprotectedinterestsintheenvironmental

andculturalresourcesifBLMcontinuestoviolatefederallawsasallegedherein.Theseinjuries

areconcreteandparticularizedandfairlytraceabletoBLMschallengeddecisions,providingthe

requisitepersonalstakeintheoutcomeofthiscontroversynecessaryforthisCourtsjurisdiction.

14. Therequestedreliefisauthorizedby28U.S.C.2201,2202and5U.S.C.

705,706.

15. Therequestedreliefwouldredresstheactual,concreteinjuriestotheCitizen

GroupscausedbytheBLMsfailuretocomplywithdutiesmandatedbyNEPA,NHPA,andthe

regulationspromulgatedpursuanttothesefederalstatutes.

16. Thechallengedagencyactionsarefinalandsubjecttojudicialreviewpursuantto

5U.S.C.702,704,&706.

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17. CitizenGroupshaveexhaustedanyandallavailableandrequestedadministrative

remedies.

18. VenueinthisCourtisproperpursuantto28U.S.C.1391(e).Asubstantialpart

oftheeventsandomissionsgivingrisetothethiscaseoccurredinBLMofficeslocatedinNew

Mexico,andthiscaseinvolvespubliclandsandenvironmentalinterestslocatedinNewMexico.

PARTIES

19. PlaintiffDINCITIZENSAGAINSTRUININGOURENVIRONMENT(DIN

C.A.R.E.)isanallNavajoorganizationcomprisedofafederationofgrassrootscommunity

activistsintheFourCornersregionofArizona,NewMexico,andUtahwhostrivetoeducateand

advocatefortheirtraditionalteachingsderivedfromDinFundamentalLaws.DINC.A.R.E.s

goalistoprotectalllifeinitsancestralhomelandbyempoweringlocalandtraditionalpeopleto

organize,speakout,andassureconservationandstewardshipoftheenvironmentthroughcivic

involvement,engagementandoversightindecisionmakingprocessesrelatingtotribal

development,andoversightofgovernmentagenciescompliancewithallapplicable

environmentallaws.DINC.A.R.E.memberslive,use,andenjoytheareasandlandscapes,

includingculturalresourcesinthearea,thatareaffectedandharmedbyoilandgasdevelopment

authorizedbyDefendants.DINC.A.R.E.bringsthisactiononitsownbehalfandonbehalfof

itsadverselyaffectedmembers.

20. PlaintiffSANJUANCITIZENSALLIANCEisagrassrootsorganization

dedicatedtosocial,economic,andenvironmentaljusticeintheSanJuanBasin.SanJuan

CitizensAllianceorganizesSanJuanBasinresidentstoprotectourwaterandair,ourpublic

lands,ourruralcharacter,andouruniquequalityoflifewhileembracingthediversityofour

PAGE8of46

regionspeople,economy,andecology.Withlongstandingeffortstoaddresstheimpactsofoil

andgasdevelopmenttotheseinterests,SanJuanCitizensAllianceisdeeplyconcernedthat

impactsfromthecontinueddevelopmentofourpubliclandswillirreparablyharmthese

treasuredlandscapes.SanJuanCitizensAlliancememberslivein,use,andenjoytheareasand

landscapesthatareaffectedbyoilandgasdevelopmentauthorizedbyDefendants.SanJuan

CitizensAlliancebringsthisactiononitsownbehalfandonbehalfofitsadverselyaffected

members.

21. PlaintiffWILDEARTHGUARDIANSisanonprofitmembershiporganization

basedinSantaFe,NewMexico,withofficesthroughouttheWest.Guardianshasmorethan

65,000membersandactivists,someofwhomlive,work,orrecreateonpubliclandsonandnear

theAPDschallengedherein.Guardiansanditsmembersarededicatedtoprotectingandrestoring

thewildlife,wildplaces,andwildriversoftheAmericanWest.Towardsthisend,Guardiansand

itsmembersworktoreplacefossilfuelswithclean,renewableenergyinordertosafeguard

publichealth,theenvironment,andtheEarthsclimate.

22. PlaintiffNATURALRESOURCESDEFENSECOUNCIL(NRDC)isanon

profitenvironmentalmembershiporganizationwithmorethan299,000membersthroughoutthe

UnitedStates.Approximately3,360ofthesemembersresideinNewMexico.NRDCmembers

useandenjoypubliclandsinNewMexico,includinglandsmanagedbytheBureauofLand

ManagementwithintheFarmingtonFieldOfficeplanningarea.NRDCmembersuseandenjoy

theselandsforavarietyofpurposesincludingrecreation,solitude,andconservationofnatural

resources.NRDChashadalongstandingandactiveinterestintheprotectionofpubliclandsin

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NewMexico,theresponsibledevelopmentofoilandgasresources,andtheprotectionofpublic

healthfromenvironmentalthreats.

23. TheCitizenGroupsmembersuseandenjoytheculturalresources,wildlands,

wildlifehabitat,rivers,streams,andhealthyenvironmentonBLMandotherlandsinNew

Mexicoforhiking,fishing,hunting,camping,photographingsceneryandwildlife,wildlife

viewing,aestheticenjoyment,spiritualcontemplation,religiouspracticesandceremonies,and

engaginginothervocational,scientific,andrecreationalactivities.TheCitizensGroups

membersderiverecreational,inspirational,spiritual,religious,scientific,educational,and

aestheticbenefitfromtheiractivities.TheCitizenGroupsmembersintendtocontinuetouse

andenjoyBLMandotherNewMexicopubliclands,culturalresources,wildlands,wildlife

habitat,rivers,streams,andhealthyenvironmentsfrequentlyandonanongoingbasislonginto

thefuture,includingthisspring,summer,fall,andwinter.

24. TheCitizenGroupsandtheirmembershaveaproceduralinterestinBLMsfull

compliancewithNEPAandtheNHPAsplanninganddecisionmakingprocesseswhen

authorizingcrudeoildevelopmentonpubliclandswithintheSanJuanBasin,andBLMs

attendantdutytosubstantiateitsdecisionsintherecordfortheseauthorizations.

25. Theaesthetic,recreational,scientific,educational,spiritual,religious,and

proceduralinterestsoftheCitizensGroupsanditsmembershavebeenadverselyaffectedand

irreparablyinjuredbytheprocessinwhichBLMhasconductedcrudeoildevelopment

decisionmakingintheSanJuanBasin.Theseareactual,concreteinjuriescausedbyBLMs

failuretocomplywithmandatorydutiesunderNEPAandtheNHPA.Theinjurieswouldbe

redressedbythereliefsought.

PAGE10of46

26. DefendantSALLYJEWELListheSecretaryoftheUnitedStatesDepartmentof

theInterior,andisresponsibleformanagingthepubliclands,andresources,andpublicmineral

estateoftheUnitedStates,includinglandsandresourcesinNewMexico,and,inthatofficial

capacity,isresponsibleforimplementingandcomplyingwithfederallaw,includingthefederal

lawsimplicatedbythisaction.

27. DefendantUNITEDSTATESBUREAUOFLANDMANAGEMENTisan

agencywithintheUnitedStatesDepartmentoftheInteriorandisresponsibleformanaging

publiclandsandresourcesinNewMexico,includingfederalonshoreoilandgasresources.In

thismanagerialcapacity,BLMisresponsibleforimplementingandcomplyingwithfederallaw,

includingthefederallawsimplicatedbythisaction.

28. DefendantNEILKORNZEisDirectoroftheBureauofLandManagement,an

agencywithintheUnitedStatesDepartmentoftheInterior,andisresponsibleformanagingthe

publiclands,resources,andpublicmineralestateoftheUnitedStates,includinglandsand

resourcesinNewMexico,and,inthatofficialcapacity,isresponsibleforimplementingand

complyingwithfederallaw,includingthefederallawsimplicatedbythisaction.

STATUTORYBACKGROUND

I. NationalEnvironmentalPolicyAct

29. NEPAisourbasicnationalcharterfortheprotectionoftheenvironment.40

C.F.R.1500.1.Itwasenactedrecognizingthateachpersonshouldenjoyahealthful

environmenttoensurethatthefederalgovernmentusesallpracticablemeanstoassureforall

Americanssafe,healthful,productive,andestheticallyandculturallypleasingsurroundings,and

toattainthewidestrangeofbeneficialusesoftheenvironmentwithoutdegradation,riskto

PAGE11of46

healthorsafety,orotherundesirableandunintendedconsequences,amongotherpolicies.42

U.S.C.4331(b).

30. NEPAregulationsexplain,in40C.F.R.1500.1(c),that:

Ultimately,ofcourse,itisnotbetterdocumentsbutbetterdecisionsthatcount.NEPAspurposeisnottogeneratepaperworkevenexcellentpaperworkbuttofosterexcellentaction.TheNEPAprocessisintendedtohelppublicofficialsmakedecisionsthatarebasedonunderstandingofenvironmentalconsequences,andtakeactionsthatprotect,restore,andenhancetheenvironment.

31. AgenciesshallintegratetheNEPAprocesswithotherplanningattheearliest

possibletimetoinsurethatplanninganddecisionsreflectenvironmentalvalues,toavoiddelays

laterintheprocess,andtoheadoffpotentialconflicts.40C.F.R.1501.2.

32. Toaccomplishthispurpose,NEPArequiresthatallfederalagenciespreparea

detailedstatementregardingallmajorfederalactionssignificantlyaffectingthequalityofthe

humanenvironment.42U.S.C.4332(C).Thisstatement,knownasanenvironmentalimpact

statement(EIS),must,amongotherthings,describetheenvironmentalimpactofthe

proposedaction,andevaluatealternativestotheproposal.Id.

33. Todeterminewhetheraproposedactionsignificantlyaffectsthequalityofthe

humanenvironment,andwhetheranEISisthereforerequired,regulationspromulgatedbythe

CouncilonEnvironmentalQuality(CEQ)provideforpreparationofanenvironmental

assessment(EA).BasedontheEA,afederalagencyeitherconcludesitsanalysiswitha

findingofnosignificantimpact(FONSI),ortheagencygoesontoprepareafullEIS.40

C.F.R.1501.4.

34. CEQregulationsprovidethateveryagencyshallpreparesupplementsto

environmentalimpactstatementsiftherearesignificantnewcircumstancesorinformation

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relevanttoenvironmentalconcernsandbearingontheproposedactionoritsimpacts.40C.F.R.

1502.9(c)(1)(ii).

35. NEPAalsorequiresthateveryagencymuststudy,develop,anddescribe

alternativestorecommendedcoursesofactioninanyproposalwhichinvolvesunresolved

conflictsconcerningalternativeusesofavailableresources...42U.S.C.4332(E).CEQ

regulationsprovidethatthealternativesevaluationistheheartoftheenvironmentalimpact

statement.40C.F.R.1502.14.Itshouldsharplydefin[e]theissuesandprovid[e]aclearbasis

forchoiceamongoptionsbythedecisionmakerandthepublic.Id.

36. Federalagenciesmust[m]akediligenteffortstoinvolvethepublicinpreparing

andimplementingtheirNEPAprocedures.40C.F.R.1506.6(a).Tothefullestextentpossible,

agenciesmust[e]ncourageandfacilitatepublicinvolvementindecisionswhichaffectthe

qualityofthehumanenvironment.40C.F.R.1500.2(d).Ataminimum,agenciesmust

[p]rovidepublicnoticeof...theavailabilityofenvironmentaldocumentssoastoinformthose

personsandagencieswhomaybeinterestedoraffected.40C.F.R.1506.6(b).Environmental

documentsincludeEAs,EISs,FONSIs,andnoticesofintentstoprepareand/orconsiderEISs.

40C.F.R.1508.10.TheNEPAregulationsstressthatNEPAproceduresmustinsurethat

environmentalinformationisavailabletopublicofficialsandcitizensbeforedecisionsaremade

andbeforeactionsaretakenandthatpublicscrutiny[is]essentialtoimplementingNEPA.40

C.F.R.1500.1(b).

37. PendingcompletionofanEIS,anagency,interalia,shallnotundertakeinthe

interimanymajorFederalactioncoveredbytheprogramwhichmaysignificantlyaffectthe

qualityofthehumanenvironmentunlesssuchaction:(1)Isjustifiedindependentlyofthe

PAGE13of46

program(2)Isitselfaccompaniedbyanadequateenvironmentalimpactstatementand(3)Will

notprejudicetheultimatedecisionontheprogram.Interimactionprejudicestheultimate

decisionontheprogramwhenittendstodeterminesubsequentdevelopmentorlimit

alternatives.40C.F.R.1506.1(c).

II. NationalHistoricPreservationAct

38. TheNHPAseekstoprotectAmericashistoricheritagebyestablishingafederal

statepartnershiptoadministersuchprotectionandbyrequiringthatfederalagenciestakeinto

accounttheimpactsoftheiractionsonhistoricproperties.Carefulcompliancewiththestatutory

andregulatoryrequirementsoftheNHPAassuresthatthelossofhistoricandculturalsitesis

kepttoaminimum,andthatadverseeffectstosuchsitesareadequatelyavoided,minimized,or

mitigated.

39. ThepurposesoftheNHPAareachievedbytheSection106consultation

processthatinvolvesadialoguebetweenaproponentfederalagencysuchasBLMwiththeState

HistoricPreservationOfficer(SHPO),thepublic,andIndianTribes.16U.S.C.470f.

40. TheNHPAimposestherequirementonfederalagenciestotakeintoaccountthe

effect[s]of[their]Undertaking[s]onanydistrict,site,building,structure,orobjectthatis

includedinoreligibleforinclusionintheNationalRegister.16U.S.C.470f.

41. TheNHPAregulationsrequirethatafederalagencyfirstestablishwhethera

proposedactionisanundertakingsubjecttoSection106consultationand,ifso,whetheritisthe

typeofactionlikelytoaffecthistoricproperties.36C.F.R.800.3.

42. IfanagencyactionisanundertakingsubjecttoSection106consultation,thefirst

stepintheconsultationprocessisfortheagencytodefinetheAreaofPotentialEffects(APEs)

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fortheaction,whichtheNHPAregulationsdefineas:

thegeographicareaorareaswithinwhichanundertakingmaydirectlyorindirectlycausealterationsinthecharacteroruseofhistoricproperties...Theareaofpotentialeffectsisinfluencedbythescaleandnatureofanundertakingandmaybedifferentfordifferentkindsofeffectscausedbytheundertaking.

36C.F.R.800.16(d).

43. Thefederalagencymustmakeareasonableandgoodfaithefforttoindentify

historicandculturalpropertieswithintheAreaofPotentialEffects.36C.F.R.800.4(b)(1).

44. ThefederalagencyisrequiredtoconsultwithIndianTribesandtheNew

MexicoSHPOastotheresultsofitsidentificationefforts,howtheundertakingmightadversely

affecthistoricandculturalsiteswithintheAPEs,andresolutionofadverseeffectstohistoricand

culturalsites.36C.F.R.800.4(b),800.5(a),800.6(a).

45. Thefederalagencymustanalyzealladverseeffectstohistoricandculturalsites

withintheAPEsincludingreasonablyforeseeableeffectscausedbytheundertakingthatmay

occurlaterintime,befartherremovedindistanceorbecumulative.36C.F.R.800.5(a)(1).

Adverseeffectsarenotlimitedtophysicaldestructionofahistoricorculturalsitebutalso

include,interalia,[c]hangeofthe...physicalfeatureswithinthepropertyssettingthat

contributetoitshistoricsignificanceandintroductionofvisual,atmosphericoraudible

elementsthatdiminishtheintegrityofthepropertyssignificanthistoricalfeatures.Id.at

800.5(a)(2)(v).

46. AFederalagency,likeBLM,canestablishaprogramalternativeforcomplying

withtheNHPASection106consultationrequirementslistedinSubpartBoftheregulation.36

C.F.R.800.3(a)(2),800.14.Indoingso,however,BLMmustconsultwithanumberof

entitiesincludingtheNewMexicoSHPO,IndianTribes,andtheAdvisoryCouncilonHistoric

PAGE15of46

Preservationregardingtheproceduresintheprogramalternative,mustseekpublicinputonthe

programalternative,andmustgetapprovalfromtheAdvisoryCouncilonHistoricPreservation

tousetheprogramalternativeinlieuoftheSubpartBregulations.

47. BLMhasbeenapprovedtheAdvisoryCouncilonHistoricPreservationtousea

programalternativeintheSanJuanBasin.KnownastheProtocolAgreementbetweenBLM

andtheNewMexicoSHPO,BLMmayusethealternativeproceduresoutlinedintheProtocolto

complywiththeSection106consultationrequirements.However,BLMcannotusetheProtocol

AgreementandmustinsteadmeetitsSection106consultingrequirementspursuanttoSubpart

Boftheregulationsforanyundertakingsubjecttounusualpublicattentionorinvolving

stronglyopposingviewpoints.

III. AdministrativeProcedureAct

48. TheAPAprovidesarighttojudicialreviewforanypersonsufferinglegalwrong

becauseofagencyaction.5U.S.C.702.ActionsthatarereviewableundertheAPAinclude

finalagencyactionsforwhichthereisnootheradequateremedyinacourt.Id.

49. UndertheAPA,areviewingcourtshall,interalia,holdunlawfulandsetaside

agencyaction...foundtobearbitrary,capricious,anabuseofdiscretion,orotherwisenotin

accordancewithlaw.5U.S.C.706(2)(A).Agencyactionsmayalsobesetasideinother

circumstances,suchaswheretheactioniswithoutobservanceofprocedurerequiredbylaw.5

U.S.C.706(2)(B)(F).

STATEMENTOFFACTS

I. EnvironmentalImpactsofFrackingintheMancosShale

50. Hydraulicfracturing,orfracking,isanoilandgasdrillingstimulation

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techniqueinvolvingthehighpressureinjectionoflargequantitiesofwater,proppants(typically

sand),andchemicaladditivesintothewellboretofracturethetargetedgeologicformationsto

enhancethereleaseofoilandnaturalgas.Somevariationofoilandgasstimulationhasbeen

usedintheSanJuanBasinsincethe1950s.However,theseearlystimulationtechniquesare

vastlydifferentfromthetypeoflargevolumemultistagefrackingtechniquescurrently

employed.DespitethislonghistoryoffrackingintheSanJuanBasin,BLMscurrent2003RMP

failstomention,letaloneanalyzeormitigate,thepotentialdirect,indirect,orcumulative

impactsofhydraulicfracturing.

51. AsrecentlyasBLMs2001reasonablyforeseeabledevelopmentscenario

(RFD),theagencystatedthathorizontalfrackingistheoreticallypossiblebutnotcurrently

appliedintheSanJuanBasinduetopooreconomics.Overthelast10years,advancesinmulti

stageandmultizonefrackinghaveenableddevelopmentthatpreviouslywasuneconomic,

includingintheSanJuanBasin.Specifically,improvementsandinnovationsinhorizontal

drillingtechnologyandmultilateralhydraulicfracturinghaveenhancedtheeconomicsof

developingtheMancosShale.

52. Hydraulicfracturingofhorizontalshalewellsisgenerallyperformedinstages.

Laterallengthsinhorizontalwellsfordevelopmentmayrangefrom1,000feettomorethan

5,000feet.Duringthefrackingprocess,withinthehorizontalportionofthewellbores,aseriesof

chargesaresetthroughtheproducingintervaltoperforatetheproductionlinerandcasingto

createsmallfracturesintheformation.Afrackingfluidmixtureistheninjectedintothe

formation,athighpressure,tocreatecracksorfractures.Thefluidsopenorenlargefracturesthat

typicallyextendseveralhundredfeet,butcanextendmorethan1,000feetawayfromthewell

PAGE17of46

bore.

53. Inthefirstseveraldaystoweeksafterfracking,thewellpressureisreleasedanda

portionofthefrackingfluidknownasflowbackreturnstothesurfaceofthewellbore.

Overlongertimeperiods,waternaturallypresentinthetargetedformationknownas

producedwatercontinuestoflowthroughthewelltothesurface.Theflowbackand

producedwatertypicallycontainstheinjectedchemicalsaswellasnaturallyoccurring

substancessuchasbrines,heavymetals,radionuclides,andhydrocarbons.Verysmallquantities

ofsometoxicfrackingchemicals,suchasbenzene,arecapableofcontaminatingmillionsof

gallonsofwater.

54. Horizontalfrackingalsorequiresthedevelopmentofnewroads,gathering

pipelinesandotherinfrastructure.Moreover,eachwelltypicallyrequiresthousandsoftrucktrips

totransportthewater,nitrogen,andchemicalsnecessaryforwellcompletionandsubsequent

disposalofflowbackandproducedwater.

55. Thereareanumberofsignificantenvironmental,cultural,andhumanhealth

impactsassociatedwithhorizontalfracking.BLMisrequiredtoprovideahardlookanalysisof

thesedirect,indirect,andcumulativeimpactsbeforethereareanyirreversibleandirretrievable

commitmentsofresourceswhichwouldbeinvolvedintheproposedactionshoulditbe

implemented.42U.S.C.4332(2)(C)(v)seealso40C.F.R.1501.2,1502.5(a).

56. BLMhasrecognizedthat[a]sfullfielddevelopmentoccurs[asaresultofnew

horizontaldrillingtechnology],especiallyintheshaleoilplay,additionalimpactsmayoccurthat

previouslywerenotanticipatedinthe[2001]RFDoranalyzedinthecurrent2003RMP/EIS,

whichwillrequireanEISlevelplanamendmentandrevisionoftheRFDforcompleteanalysis

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oftheMancosShale/GallupFormation.79Fed.Reg.10,548(Feb.25,2014).Notably:

a. The2001RFDisnotaNEPAorenvironmentaldocumentasthatterm

isdefinedbyNEPA(see40C.F.R.1508.10)and

b. The2003RMP/EISdidnottakeahardlookatthespecificimpactsofoil

andgasdevelopmentoftheMancosShale,orconsideralternatives

specifictotheMancosShaleformationandtothesurfaceenvironment

andpeoplelivingabovetheMancosShaleformation.

57. Frackingfluidisaconglomerationofvariouschemicalsandcompounds,manyof

whicharehighlytoxic.AlthoughBLMpointsoutthatchemicalstypicallymakeupjust1%of

thetotalvolumeofthefracturingfluid,whenmillionsofgallonsofwaterarebeingused,the

amountofchemicalsperfrackingoperationisverylarge.Forexample,theEPAhasnotedthat

fora3milliongallonfracturingoperation,15,000to60,000gallonsofchemicaladditiveswould

generallybeused.Manyofthesefrackingfluidchemicalsareknowntobetoxictohumansand

wildlife,andseveralareknowntocausecancer.Toxicsubstancesusedinfrackinginclude

petroleumdistillatessuchaskeroseneanddieselfuel(whichcontainbenzene,ethylbenzene,

toluene,xylene,naphthaleneandotherchemicals)polycyclicaromatichydrocarbonsmethanol

formaldehydeethyleneglycolglycolethershydrochloricacidandsodiumhydroxide.

58. Giventheuseofsuchchemicalsandtheirpresenceinflowbackandproduced

water,thecontaminationofdomesticandagriculturalwatersuppliesfromhydraulicfracturingis

aseriousconcern.Moreover,ifthewellboreisnotproperlysealed,cased,oritsintegrityis

otherwisecompromised,chemicalsandothertoxicsubstancescanescapeastheymovethrough

thewell.Thefrackingfluidcanalsomigrateunderground,throughnaturalandinducedfractures,

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andleadtocontaminationofgroundwater.Activeandabandonedwellscanalsoserveas

pathwaysforthemigrationofcontaminantsintowatersources.Spillsoffrackingfluidsincluding

theflowbackcanoccuronthesurfaceduringstorage,transportationand/ordisposal.Flowback

andproducedwaterbroughttothesurfacealsocontainvolatileorganiccompounds(VOCs)

andotherHazardousAirPollutants(HAPs),whichvaporizeandcontributetoairpollution.

59. AccordingtotheEPA,theoilandgasindustryisthelargestindustrialsourceof

emissionsofVOCs,agroupofchemicalsthatcontributetotheformationofgroundlevelozone.

Theseemissionsincludeairtoxicssuchasbenzene,ethylbenzene,andnhexane,whichare

pollutantsknown,orsuspectedofcausingcancerandotherserioushealtheffects.TheEPA

reportsthattheoilandgasindustry:emits2.2milliontonsofVOCs,130,000tonsofairtoxics,

and16milliontonsofgreenhousegases(methane)eachyear(40%ofallmethaneemissionin

theU.S.).TheindustryisoneofthelargestsourcesofVOCsandsulfurdioxideemissionsinthe

UnitedStates.

60. Inrecentyears,theSanJuanBasinhasseenelevatedmonitoredlevelsforthe8

hourozoneNationalAmbientAirQualityStandard(NAAQS).Exposuretoozoneisaserious

concernasitcancauseorexacerbaterespiratoryhealthproblems,includingshortnessofbreath,

asthma,chestpainandcoughing,decreasedlungfunctionandevenlongtermlungdamage,all

ofwhichcancontributetoprematuredeaths.Thereisnoroomforgrowthinemissionsthat

contributetotheseharmfullevelsofozonepollutionintheSanJuanBasin,inparticularnitrogen

oxides(NOX)andVOCs.Anyincreaseinemissionsofozoneprecursorswillexacerbatethe

negativehealtheffectsofozoneintheregion.TheexpansionofdevelopmentintotheMancos

ShalehasthepotentialtosignificantlyaddtoemissionsofNOXandVOCs.SanJuanCounty,

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NewMexico,hasaparticularlyvulnerablepopulationwithhighincidenceofrespiratorydisease:

SanJuanCountyhasahigherincidenceofchroniclowerrespiratorydisease(CLRD)comprisedofchronicbronchitis,asthma,andemphysemacomparedtoNewMexicoortherestoftheUnitedStates.AnotherstudyfoundthatelevatedlevelsofozoneinSanJuanCountywerelinkedtoincidenceofasthmarelatedmedicalvisits.ThestudyfoundthatSanJuanCountyResidentsare34percentmorelikelytohaveasthmarelatedmedicalvisitsafter20partsperbillionincreasesinlocalozonelevels.

61. OnDecember17,2014,EPApublishedaproposaltoreviseNAAQSforozoneto

65to70partsperbillion(ppb)fromthecurrent75ppb.79Fed.Reg.75234(Dec.17,2014).

Thisdecisionwasdrivenbysignificantrecentscientificevidencethatthecurrentstandardof75

ppbdoesnotadequatelyprotectpublichealthandthatozoneconcentrationsaslowas72ppbcan

causerespiratoryharmtoyoung,healthyadultsfollowingexposureforlessthaneighthours.

UnderEPAsproposedrevisedozonestandard,SanJuanCountywouldbeinnonattainmentof

theNAAQSstandard.

62. Fineparticulatematter(PM2.5orparticleswithadiameterof2.5micrometersor

less)isanotherpotentialsourceofmajorhealthimpactsintheSanJuanBasin,ofparticular

concern,here,becauseofincreasedtrucktrafficonunpavedroadsandthecreationoffugitive

dust.PM2.5canbecomelodgeddeepinthelungsorcanenterthebloodstream,worseningthe

healthofasthmaticsandevencausingprematuredeathinpeoplewithheartandlungdisease.

EvenPM2.5concentrationslowerthanthecurrentNAAQSareaconcernforhumanhealth.

63. Evenwhenthetargetofdevelopmentisoil,hydraulicfracturingresultsinthe

releaseofassociatedgasproduction,predominantlymethane.Astheprimaryingredientof

naturalgas,thereleaseofmethane,whetherthroughvented,flared,orfugitiveemissions,results

inthelossofanenergyresourcethatcouldotherwisebeusedbyhomes,schools,andbusinesses.

Associatedgasiscommonlywastedthroughventingorflaring,aswellasfugitiveleaks,

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contributingsignificantlytoglobalwarming.TheNobelprizewinningIntergovernmentalPanel

onClimateChange(IPCC)hasidentifiedtheheattrappingeffectofmethaneorglobal

warmingpotential(GWP)as34timesmorepotentthancarbondioxideovera100year

periodand86timesmorepotentovera20yearperiod,underscoringtheimportanceofkeeping

methaneoutoftheatmosphere.Forfossilmethane,thewarmingimpactisevengreatermethane

is36timesmorepotentthancarbondioxideovera100yearperiodand87timesmorepotent

overa20yearperiod.

64. InSeptember2014,scientistsfromtheUniversityofMichigan,NASAsJet

PropulsionLaboratory,LosAlamosNationalLaboratoryandCaliforniaInstituteofTechnology

publishedtheresultsofastudyofatmosphericmethaneconcentrationsintheU.S.Thestudy

analyzedmethaneconcentrationsataregionalscaleusingbothspacebasedandearthbased

measurements.Thisstudyidentifiedwhathasbeendescribedasamethanehotspotoverthe

SanJuanBasin.TotaloilandgasmethaneemissionsintheSanJuanBasinthathavebeen

reportedtotheU.S.EPAGreenhouseGasReportingProgramwere330,000metrictonsfor

2012.Reportedmethaneemissionshavegrownbyover10%withatotalfor2013ofalmost

370,000metrictons.Thehotspotstudyconductedsimulationsofmethaneemissionsforthe

regionfor2012toestimatewhatemissionsratewouldcorrespondtoobservedatmospheric

methaneconcentrations.Thesimulationsresultedinaveragemethaneemissionsfromallsources

intheSanJuanBasinof590,000metrictonsperyear.Thislevelofemissionsrepresentsan

exceptionallylargeshareoftotalnaturalgasmethaneemissionsidentifiedintheU.S.

GreenhouseGasInventory.TheexpansionofdevelopmentintotheMancosShalehasthe

potentialtosignificantlyincreasemethaneemissionsintheSanJuanBasin.

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65. HydraulicfracturingcompletionsintheMancosShalearetypicallydesignedwith

nitrogenfoam.Whilenitrogenfoamfrackingcanminimizewaterusageandimprovefluid

recoveries,itnecessarilyrequiresflaringandthuscontributestoairqualityimpactsand

greenhousegasemissions.Theuseofnitrogenfoaminthefrackingprocessinitiallyresultsin

upwardsof60%nitrogencontentinproducedgas,whichmustbeflaredforanaverageof6090

daysuntilthenitrogencontentisreducedto10%orlessbeforethegascanenterapipeline.

Whenthetargetofdevelopmentisoil,flaringcantakeplaceformuchlonger.Theflaringof

producedgasnotonlywastesimportantfederalmineralresourcesthatcouldotherwisebeusedto

heatourhomes,butalsoreducesroyaltypaymentstostateandfederalgovernmentswhile

significantlycontributingtothegreenhousegasemissions.Thehigherpermeabilityofnitrogen

gasusedinfrackingalsoresultsinagreaterlikelihoodofcontaminationtowaterresources.

66. MancosShaledevelopmentisresultinginsignificantair,visual,andauditory

impactstotheSanJuanBasinshistoricandculturalsites.

67. MancosShaledevelopmentisaffectingtheareasviewshedinanumberofways.

Ozoneisthemaincomponentofsmog.Gasflaresfromfrackingcreatelightpollutionwhich,

whencombinedwithsmog,interferewiththeboththeunobstructedviewshedfromChaco

CultureNationalHistoricalParkandwiththeclarityofnightskies.ChacoCultureNational

HistoricalParkwasrecentlydesignatedanInternationalDarkSkyPark,oneof20inthe

world,foritsnearpristinenightskies,whichareimportanttonocturnalecosystemsandthe

visitorexperience.ThousandsvisittheParkeachyeartoparticipateintheChacoNightSky

Program.ThesmogandotherairpollutioncreatedbyfrackingcouldshroudtheParkand

surroundinglandscapeinanoticeablehazeandobstructthenaturalviewwithindustrialdrillrigs

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andflaring.

68. Bothfrackingandthelaterinjectionoffrackingwastewatercaninduce

earthquakeswhenpressurizedliquidisinjectedintowells.Theseearthquakescoulddamageany

numberofstandingpueblowallsremainingintheParkoratotherprehistoricandhistoricsites

withintheSanJuanBasin.

II. BLMsOilandGasPlanningandManagement

69. BLMmanagesonshoreoilandgasdevelopmentthroughathreephaseprocess.

Eachphaseisdistinct,servesdistinctpurposes,andissubjecttodistinctrules,policies,and

procedures.

70. OilandgasdevelopmentisamultipleusemanagedinaccordwiththeFederal

LandPolicyandManagementAct(FLPMA),43U.S.C.1701etseq.FLPMA,in43U.S.C.

1732(b),providesthat,[i]nmanagingthepubliclands,BLMshall,byregulationor

otherwise,takeanyactionnecessarytopreventunnecessaryorunduedegradationofthelands.

BLM,in43U.S.C.1701(a)(8),furtherprovidesthatBLMmustalsomanagethepubliclands:

[I]namannerthatwillprotectthequalityofscientific,scenic,historical,ecological,environmental,airandatmospheric,waterresource,andarcheologicalvaluesthat,whereappropriate,willpreserveandprotectcertainpubliclandsintheirnaturalcondition,thatwillprovidefoodandhabitatforfishandwildlifeanddomesticanimalsandthatwillprovideforoutdoorrecreationandhumanoccupancyanduse.

71. Inthefirstphaseofoilandgasdevelopment,BLMpreparesaResource

ManagementPlan(RMP).RMPsarepreparedinaccordancewithFLPMAandFLPMAs

planningregulations,43C.F.R.1600etseq.,withadditionalguidancefromBLMsLandUse

PlanningHandbook(H16011)(hereafterBLMHandbook).AnRMPprojectspresentand

futureuseofpubliclandsandtheirresourcesbyestablishingmanagementpriorities,aswellas

PAGE24of46

guidingandconstrainingBLMsimplementationstagemanagement.Withrespecttofluid

mineralsleasingdecisions,theRMPdetermineswhichlandscontainingfederalmineralswillbe

opentoleasingandunderwhatconditions.

72. UnderlyingBLMsassumptionsregardingthepaceandscopeoffluidminerals

developmentforthedurationoftheRMPisaReasonablyForeseeableDevelopmentScenario

(RFDS).AnRFDSisnotaNEPAorenvironmentaldocumentasthattermisdefinedby

NEPA.40C.F.R.1508.10.

73. TheBLMHandbookprovidesthat[t]hedeterminationwhethertoamendor

reviseanRMPbasedonnewproposals,circumstances,orinformationdependson(1)thenature

ofnewproposals,(2)thesignificanceofthenewinformationorcircumstances,(3)specific

wordingoftheexistinglanduseplandecisions,includinganyprovisionsforflexibility,and(4)

thelevelanddetailoftheNEPAanalysis.Ayesanswertoanyofthesequestionssuggeststhe

needtorevisitexistingdecisionsand/ortheNEPAanalysis.

74. BLMisfurtherrequiredtosupplementitsRMP/EISiftheagencymakes

substantialchangesintheproposedactionthatarerelevanttoenvironmentalconcernsorthere

aresignificantnewcircumstancesorinformationrelevanttoenvironmentalconcernsandbearing

ontheproposedactionoritsimpacts.40C.F.R.1502.9(c)(1)(i),(ii).

75. Inthesecondphaseofoilandgasdevelopment,BLMidentifiestheboundaries

forlandstobeofferedforsaleandproceedstosellandexecuteleasesforthoselandsthrougha

leasesale.

76. Leasesaresoldinaccordancewith43C.F.R.3120etseq.,withadditional

agencyguidanceoutlinedinBLMInstructionMemorandum(IM)No.2010117,OilandGas

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LeasingReformLandUsePlanningandLeaseParcelReviews(hereafterLeasingReforms).

77. Afteraleaseisissued,BLMmayimposeconditionsofapproval(COAs)that

aredelimitedbythetermsandconditionsofthelease.

78. Thethirdphaseofoilandgasdevelopmentoccursoncealeaseisissued,where

thelesseeisrequiredtosubmitanapplicationforpermittodrill(APD)forapprovalbyBLM

priortodrilling.

79. NEPAallowsBLMtotieroilandgasdecisionmakingattheAPDphaseto

analysiscoveredinabroaderRMP/EIS.40C.F.R.1508.28.Wherespecificissuesin

subsequentoilandgasdecisionmakingprocessarenotcoveredintheRMP/EIS,theagency

cannottiertotheRMP/EIS.Inthatcase,asitespecificNEPAanalysismustbepreparedwhich

includesanalysisofrelevantimpacts.

80. TheBLMHandbookoffersguidanceregardingtheagencysdecisionmaking

processatthisfinalstageofoilandgasdevelopment,andprovidesthat:

uponreceiptofaproposaltodevelopanoilandgasfield,theBLMwouldevaluatetheproposalforconformancewiththeRMP.IftheproposalisconsistentwiththereasonablyforeseeabledevelopmentanalyzedintheRMP/EISandtheproposalisconsistentwiththeRMPdecisions,changestotheRMP/EISareprobablynotnecessary.Inthisinstance,theBLMwouldworkwiththeleaseholderstoobtainappropriatesitespecificinformation,thenprepareanactivitylevelEAorEIStoapprovesomeorallofthewellsinthefieldandsetthestageforsubsequentapplicationforpermittodrillapprovals.....................................................................................................................................IftheproposalexceedsthereasonablyforeseeabledevelopmentanalyzedinthecurrentRMP/EIS,anewreasonablyforeseeabledevelopmentscenarioandNEPAanalysissupplementingtheRMP/EISwouldbewarranted.IftheproposalexceedsandissubstantiallydifferentfromthereasonablyforeseeabledevelopmentanalyzedintheRMP/EIS,andthenewNEPAanalysiscouldreasonablybeexpectedtoresultinchangestoRMPdecisions,aplanamendmentmayalsobewarranted.

III. BLMs2003ResourceManagementPlanand2001ReasonablyForeseeable

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DevelopmentScenario

81. In2001,BLMreleaseda20yearReasonablyForeseeableDevelopmentScenario

(2001RFDS)tosupporttheagencysdecisionmakingforthethenpendingResource

ManagementPlan(2003RMP)fortheFarmingtonFieldOffice.

82. WhileBLMusedthe2001RFDSinthe2003RMPdecisionmakingprocessto

projectfluidmineraldevelopmentfortheNewMexicoportionoftheSanJuanBasin,theRFDS

isnotaNEPAdocumentsubjecttopubliccommentanddoesnotprovideanyanalysisof

environmentalimpactsfortheprojecteddevelopment.ThegoaloftheRFDSwassimplyto

determinethesubsurfacedevelopmentsupportedbygeologicalandengineeringevidence,and

tofurtherestimatetheassociatedsurfaceimpactofthisdevelopmentintermsofactualwells

drilled.

83. WithrespecttodevelopmentoftheMancosShale,the2001RFDSprovided:

existingMancosShaleandGallupSandstonereservoirsareapproachingdepletionandare

marginallyeconomic.Mostarenotcurrentlyconsideredcandidatesforincreaseddensity

developmentorfurtherenhancedoilrecoveryoperations.Itisanticipatedthatmany

Mancos/GallupwellswillneedtobepluggedwithinthetermofthisRFD.

84. The2001RFDSmentionedhorizontaldrillingasapossibilitybutultimately

dismisseditasnotfeasible:

HorizontaldrillingispossiblebutnotcurrentlyappliedintheSanJuanBasinduetopoorcosttobenefitratio.Ifhorizontaldrillingshouldproveeconomicallyandtechnicallyfeasibleinthefuture,thenextadvancementinhorizontalwelltechnologycouldbedrillingmultilateralsorhydraulicfracturinghorizontalwells.Thesetechniquesarecurrentlycomplexandcostly,andthereforetypicallyinappropriateformostonshoreU.S.reservoirs.Comprehensiveengineeringandgeologicresearchwillberequiredinthenearfutureinorderforthesetechniquestobecomeviablewithinthe20yeartimeframeanticipatedby

PAGE27of46

thisRFD.

85. The2001RFDSdidconsiderthepossibilityofproductionintoMancosShale,but

statedthatsuchdevelopmentwouldlikelybeachievedthroughadditionofbehindpipereserves

innewandexistingDakotawellsratherthandrillingofnewMancosspecificwells,concluding

that,overthe20yearlifeofthe2001RFDSitwasprobablethat300explorationand

developmentwellstargetingMancosShale/GallupSandstonewouldbedrilledusing

conventionalverticaldrillingtechniques.

86. TheprospectsofdevelopingtheMancosShalewassoremotethatthe2003

RMP/EISfailedtoquantifyortoanalyzethisdevelopmentaltogether,letaloneconsider

alternativestoassesswhetherandhowthisdevelopmentshouldproceed.Infact,nowhereinthe

2003RMP/EISdoesBLMevenmentiontheMancosShale.Nordoesthe2003RMP/EIS

mentionoranalyzethetypeofhorizontaldrillingandhydraulicfracturingtechnologynecessary

todevelopMancosShale.Thepublicthereforehadnoopportunitytoparticipateinthe2003

RMP/EISprocesstounderstandwhetherandhowtheMancosShalewouldbedeveloped,orto

provideinputtohelpshapewhetherandhowtheMancosShalewouldbedeveloped.

IV. BLMsPendingRMPAmendmentandEIStoAddressFrackingofMancosShale

87. OnFebruary25,2014,BLMpostedaFederalRegisterNoticeofIntenttoprepare

anRMPAmendmentandEIS(MancosRMPA/EIS)fortheFarmingtonFieldOffice,79Fed.

Reg.10,548(Feb.25,2014),whichprovidedinpart:

TheRMPamendmentisbeingdevelopedinordertoanalyzetheimpactsofadditionaldevelopmentinwhatwaspreviouslyconsideredafullydevelopedoilandgasplaywithintheSanJuanBasininnorthwesternNewMexico.

Subsequentimprovementsandinnovationsinhorizontaldrillingtechnologyandmultistagehydraulicfracturinghaveenhancedtheeconomicsofdevelopingthis

PAGE28of46

[MancosShale/GallopFormation]stratigraphichorizon.

Asfullfielddevelopmentoccurs,especiallyintheshaleoilplay,additionalimpactsmayoccurthatpreviouslywerenotanticipatedintheRFDoranalyzedinthecurrent2003RMP/EIS,whichwillrequireanEISlevelplanamendmentandrevisionoftheRFDforcompleteanalysisoftheMancosShale/GallupFormation.

88. OnoraboutMay28,2014,CitizenGroupssubmittedscopingcommentstothe

agencyregardingtheMancosRMPA/EIS.Thesescopingcommentsincludedextensivetechnical

information,reports,andlegalanalysisregardingcriticalresources,issues,andalternatives

necessaryforconsiderationintheagencysdecisionmakingprocess.

89. Amongtheissuesraised,CitizenGroupsidentifiedtheagencysdutytosuspend

oilandgasleasinganddevelopmenttargetingtheMancosShalependingcompletionofthe

MancosRMPA/EIS,identifyingtheinherentprejudiceandlimitationofalternativestothe

ultimatedecisionthatwouldresultfromsuchaction.

90. CitizenGroupsfurtheridentifiedtheagencysrequirementtotakeahardlook

atthedirect,indirect,andcumulativeimpactsofMancosShaledevelopmentandtheneedto

considerimpactstocertainresourcevalues,includingclimatechange,methaneemissionsand

waste,hydraulicfracturing,waterresources,humanhealth,andlivingcommunities.

91. OnoraboutOctober27,2014,CitizenGroupssubmittedtoBLMsupplemental

commentsontheMancosRMPA/EISandasecondrequestforamoratoriumregardingthe

agencysongoingapprovalofAPDsauthorizinghorizontalfrackingoftheMancosShale.

92. Specifically,CitizenGroupsidentifiedBLMsinabilitytotierprojectlevel

APDanalysestargetingMancosShaletotheunderlying2003RMP/EISbecausethatdocument

failedtoanalyzetheimpactsofsuchdevelopmentortoconsideralternativesdesignedtoassess

whetherandhowthatdevelopmentshouldproceed.CitizenGroupsalsoidentifiedspecific

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deficienciesinthe2003RMP/EISwithrespecttocertainresourcevaluesincludingimpactsto

airquality,greenhousegasemissionsandclimatechange,surfaceandgroundwater,threatened

andendangeredspecies,aswellasculturalresourcesthatprecludetheagencysapprovalof

drillingpermitstargetingMancosShale.

93. OnoraboutDecember18,2014,CitizenGroupsmetwithBLMstafffromthe

NewMexicoStateOfficeandFarmingtonFieldOfficetoreiteratetheirconcernswiththe

agencysongoingapprovalofAPDsforfrackingintheMancosShaleandtoagainrequesta

moratoriumofdrillingauthorizationsuntilBLMcompletedtheMancosRMPA/EIS.

94. InaletterdatedDecember11,2014,anddistributedtoCitizenGroupsatthis

meeting,BLMdeniedtheirrequesttoplaceamoratoriumonapprovalofallnewAPDs

authorizingfrackingintheMancosShale.

V. CurrentFrackingoftheMancosShaleandBLMsApprovalofAPDs

95. InOctober2014,BLMfinalizedanewRFDSforNorthernNewMexico(2014

RFDS)specificallytoestimatethescaleofanticipatedMancosShaledevelopment.

96. The2014RFDSdividestheSanJuanBasinintothreeregionswhenquantifying

oildevelopmentpotentialintheMancosShale/Gallupformations:thehighpotentialregion

(200,500acres),themoderatepotentialregion(211,900acres),andthelowpotentialregion

(756,000acres).Allowingforfulldevelopment,the2014RFDSestimates1,600newwellsinthe

highpotentialregion,330newwellsinthemoderatepotentialregion,and30newwellsinthe

lowpotentialregion.

97. HorizontalwelldevelopmentintheMancosShalebeganin2010withtwogas

wellsdrilledinthenorthernpartoftheSanJuanBasin.InSeptember2011,thefirstoil

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producinghorizontalwellwasdrilledandfrackedinthenorthwestpartoftheBasin.Inearly

2012,thefirsthorizontaloilwellwasdrilledandfrackedinthesouthernpartoftheBasin.

98. Betweenearly2012andApril2014,70horizontalwellsweredrilledandfracked

intheMancosShale.

99. Accordingtothe2014RFDS,industryhasbeenencouragedbyearlyresultsand

activitycontinuestobestrong.Fromthebeginningof2014totheendofJulyof2014,industry

hadfiled99horizontalwellAPDstargetingtheMancosShale.Thelargestshareof

theseapproximately41wereinthesouthernportionoftheBasinaroundLybrookand

Counselor.

100. WhenCitizenGroupsmetwithBLMonDecember18,2014,theagencystated

thatithadapprovedapproximately119APDstargetingMancosShalesincethebeginningof

2014.TheagencycontinuestoapproveMancosShaleAPDs,andhasauthorizedatleast130

APDstodate.

101. BLMhasfailedtoprovidesufficientinformationtothepublictodeterminethe

exactnumberofAPDstheagencyhasapproved,andwhichofthosewellshavebeendrilledto

date.

102. AsprovidedinMichaelGold,etal.,115IBLA218(1989),whereaninitial

exploratorywellhasbeensuccessfullydrilledandalesseefilesanAPDforadditional

developmentwells,thefilingoftheAPDtriggerstherequirementforanEIS,unlessanEIShas

alreadybeenpreparedwhichanalyzestheimpactsthatcanbeexpectedfromfullfield

development.

103. IndustrysubmittedAPDstoBLMcommonlyseekapprovalformultiplewellsin

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onepermit.BLMhasbeenroutinelypreparingindividual,piecemealEAsforeachAPDthe

agencyreceives,andthensubsequentlyissuingaFONSIforeachAPD.Theagencyhasfailedto

provideanyaggregatedNEPAanalysisconsideringthefullscaleofongoingconnectedand

cumulativedevelopmentintheMancosShale.

104. AsprovidedbyBLM,APDsundergoaninternalscopingprocessbutarenot

madeavailableforpublicrevieworcomment.Becausetheagencyhasfailedtoprovide

sufficientinformationtothepublic,CitizenGroupsdonotknowtheexactnumberofAPDsfor

frackingintheMancosShalethattheagencyhasreceived,forwhichofthoseAPDsBLMhas

completedcorrespondingNEPAdocumentation,andwhichBLMhasapproved.BLMhasalso

failedtoprovidethepublicwithinformationregardingthecommencementofgrounddisturbing

activitypursuanttotheseAPDs.

105. AlistofallEAsobtainedbyCitizenGroupsforMancosShaleAPDs,as

identifiedbyNEPAidentificationnumberandorganizedbyyear,isprovidedattheendofthis

documentasAppendix1.

106. AlloftheEAsobtainedbyCitizenGroupstiertoandincorporatebyreferencethe

informationandanalysiscontainedinBLMs2003RMP/EIS.

107. AlloftheEAsfortheAPDauthorizationslistedinAppendix1containvirtually

identicallanguageandjustificationforreachingaFONSI.NoneoftheEAsanalyzethedirect,

indirect,andcumulativeimpactsoftheproposedactions.NoneoftheEAsanalyzesitespecific

impacts.NoneoftheEAsconsiderarangeofreasonablealternatives,letalonealternativesthat

addressfullfielddevelopmentoftheBasininaccordwithreasonablyforeseeablefullfield

development.

PAGE32of46

108. WhileindividualsEAsfortheapprovalslistedinAppendix1maycontainminor

differencesinverbiage,theyarevirtuallyidenticalinmostrespects.Whendiscussingthe

AffectedEnvironmentandEnvironmentalConsequencesfortheproposedAPDs,thelanguage

inallintheEAsisvirtuallyidenticalthroughout,including,forexample,theentireairresources

sectionsofthosedocuments.Forexample,whendiscussinggreenhousegasemissions,eachof

theAPDsprovides:

TheavailablestatewideGHGsummarycombinesGHGemissionsfromCO2andCH4.TocomparetheGHGemissionsfromtheProposedActionestimatedbythecalculatorwithstatewideGHGemissions,CO2eemissionsforbothCH4andCO2weresummed.ThetotalstatewideGHGemissionestimatefor2007was76,200,000metrictonsCO2e(76.2millionmetrictons(NMED2010).TheestimatedCO2emetrictonsemissionsfromonehorizontaloilwell(609.2metrictons)wouldrepresenta0.0008percentincreaseinNewMexicoCO2emissions.

109. ThecumulativeimpactsanalysisforairresourcesintheEAsfortheapprovals

listedinAppendix1arealsoidentical,providingthat[a]nalysisofcumulativeimpactsfor

reasonabledevelopmentscenariosandreasonablyforeseeabledevelopmentscenariosofoiland

gaswellsonpubliclandsintheBLMFFOwaspresentedinthe2003RMP.

110. WhiletheEAsallcontainadescriptionoffracking,noneprovidesanyactual

analysisofthedirect,indirect,orcumulativeimpactsthatfrackingwillhaveontheenvironment

orhumancommunitiesinthearea.EachAPDprovidesonlythat:

Stimulation(i.e.,hydraulicfracturingorfracking)isaprocessusedtomaximizetheextractionofundergroundresourcesbyallowingoilornaturalgastomovemorefreelyfromtherockporestoproductionwellsthatbringtheoilorgastothesurface.Fluids,commonlymadeupofwater(99percent)andchemicaladditives(1percent),arepumpedintoageologicformationathighpressureduringfracking(EPA2004).Chemicalsaddedtostimulationfluidsmayincludefrictionreducers,surfactants,gellingagents,scaleinhibitors,acids,corrosioninhibitors,antibacterialagents,andclaystabilizers.Whenthefrackingpressureexceedstherockstrength,thefluidsopenorenlargefracturesthattypicallyextendseveralhundredfeetawayfromthewellbore,andmayoccasionallyextendupto1,000

PAGE33of46

feetfromthewellbore.Afterthefracturesarecreated,aproppingagent(usuallysand)ispumpedintothefracturestokeepthemfromclosingwhenthepumpingpressureisreleased.Afterfrackingiscompleted,aportionoftheinjectedfrackingfluidsreturnstothewellboreandisrecoveredforfuturefrackingoperations(EPA2004)ordisposal.StimulationtechniqueshavebeenusedintheU.S.since1949andintheSanJuanBasinsincethe1950s.Overthelast10years,advancesinmultistageandmultizonefrackinghaveallowedforthedevelopmentofgasfieldsthatpreviouslywereuneconomic,includingtheSanJuanBasin.

111. TheEAsfortheapprovalslistedinAppendix1failtoprovideanymeaningful

analysisoftheimpactsofhydraulicallyfracturingtheMancosShale.TheEAsalsofailtodiscuss

oraggregatethecurrentandforeseeablecumulativeimpactsfromallAPDstargetingMancos

Shale,orexistingactiveoilandgaswellsintheSanJuanBasinthatdonottargethorizontal

drillingandhydraulicfracturingintheMancosShale.Moreover,theEAsfailtoconsiderarange

ofreasonablealternativesappropriatetothereasonablyforeseeableprospectsoffullfield

development.

112. WhilemanyoftheapprovedAPDsareinthesouthernportionoftheSanJuan

Basin,aroundCounselorandLybrookanareanotedforapatchworkofState,Federal,

NavajoTrust,NavajoAllotment,andprivatelands,andanareapredominatedbylowincome

NativeAmericanpopulationsthereisonlycursorymentionofenvironmentaljusticeissues.

Theenvironmentaljusticediscussionislimitedtostatementsthattheproposedprojectswould

resultinnodisproportionate,negativeeffectstominorityorlowincomepopulations.

113. NoneofBLMsEAsfortheMancosShaleAPDsincludeanylandscapelevel

analysisofimpactstosignificanthistoricandculturalpropertiessuchastheChacoCultural

NationalHistoricalPark,ChacoanOutliers,orotherculturalcomponentsoftheGreaterChaco

Landscape.BydefiningtheanalysisareaforeachAPDasthewellpadanditsassociated

features,BLMlimiteditsimpactsanalysisonlytohistoricpropertieswithintheAPDfootprint.

PAGE34of46

BLMdidnotanalyzenoise,air,andvisualimpactsfromactivitiesonthewellpadsandtheir

associatedinfrastructuretohistoricandculturalpropertieslocatedoutsidetheprojectfootprint.

114. ThereisnoevidencethatBLMconsultedwiththeNewMexicoSHPOoverthe

direct,indirect,orcumulativeimpactsofAPDactivitiesonhistoricandculturalproperties

locatedoutsideoftheprojectfootprint.

115. Theapprovalofatleast130APDsforfrackingintheMancosShalehasalready

ledtosubstantialimpactstotheenvironment,includingtoculturalresourcesandthepeople

livinginandvisitingthearea.Thepresenceofdrillingrigs,pumpjacks,wells,flaring,tanks,

pipelines,relatedinfrastructure,andextensivenewroadsystemshaveledtoimpactsincluding

butnotlimitedtodegradationofvisuallandscapes,increasedairpollution,increasednoise

pollution,reducedrecreationalopportunities,reducedopportunitiesforsolitudeandspiritualuse

oftheland,increasedsafetyhazards,andsignificantlyincreasedtrucktraffic.Further,BLMhas

signaledandfurtherunderscoredthefullscalenatureofcurrentdevelopmentduringajust

completedscopingperiodtoprepareanEAtobuilda50,000barrelperdaycrudeoilpipeline

thatwouldquintuplethecurrentproductionvolumeintheBasin.

F. BLMsFailuretoAllowforPublicParticipationinAgencyDecisionmaking

116. UponreceiptofanAPDornoticeofstaking,BLMisrequiredtopostinformation

forpublicinspectionatleast30daysbeforetakingactiontoapprovetheAPD.43C.F.R.

3162.31(g).

117. PublicinvolvementisalsoafundamentalprovisionofNEPA,requiringBLMto

involvethepublictotheextentpracticableandto[m]akediligenteffortstoinvolvethepublicin

preparingandimplementingtheirNEPAprocedures.40C.F.R.1501.4(b),1506.6.Seealso

PAGE35of46

43C.F.R.46.305.

118. InBLMslettertoCitizenGroups,datedDecember11,2014,theagencystates

thateachAPDisscreenedduringaninternalscopingprocesstoidentifytheissuesforanalysisin

eachEA.BLMfurtherstatedthatEAsforroutineAPDsdonotgenerallyrequireapublic

commentperiodbecauseoftheirroutinenature,thetightregulatorytimeframes,andbecause

numerouspublicinvolvementopportunitiesareprovidedduringtheinitialstagesofproject

development.

119. Throughoutthecourseof2014,CitizenGroupsperiodicallycheckedtheBLM

FarmingtonFieldOfficewebsiteNEPAlogfordocumentationrelatingtoMancosShale

development.Oneachoccurrencenoinformationwasavailable.

120. OnoraboutOctober2,2014,aCitizenGroupsrepresentativevisitedtheBLM

FarmingtonFieldOfficeReadingRoomtoreviewEAspreparedforoilandgasprojectstargeting

theMancosShale.NoEAswereavailableintheReadingRoomforthepublic.Thesameday,

CitizenGroupssentanemailtoBLMstatingthatnooilwellrelatedEAswereavailabletothe

publiceitherintheReadingRoomoronBLMswebsiteandidentifyingspecific

developmentareasofconcerninthesouthernportionoftheSanJuanBasin.

121. OnoraboutOctober3,2014,inanemailresponsefromBLMtoCitizenGroups,

theagencyconfirmed:theyvehadsomeworkloadissuesthathavepreventedthemfromgetting

EAsintothepublicroom.

122. OnoraboutDecember7,2014,CitizenGroupssentalettertoBLMoutlining

theirconcernswithpublicparticipationandagenerallackoftransparencyintheagencys

decisionmakingprocess.ThisletterreiteratedconcernsrelatedtotheavailabilityofNEPA

PAGE36of46

documentationforMancosShalewells,aswellasidentifiedtheagencysfailuretopostNotices

ofStakingforpublicreview,whichwerealsonotavailableinBLMsreadingroomoronline.

123. InaletterdatedJanuary26,2015,BLMrespondedtoCitizenGroupsletter,

notingthatBLMmadearrangementstomakethoseEAsavailable,andhavesinceidentified

andareworkingtoimproveourprocessforgettingEAsinthePublicRoom.

124. NotuntilFebruary,2015,didBLMbegintopostNEPAdocumentationforAPDs

intheSanJuanBasintotheagencyswebsite.

CLAIMSFORRELIEF

FIRSTCLAIMFORRELIEF(ViolationofNEPAFailuretoAnalyzeDirect,Indirect,andCumulativeImpactsof

MancosShaleFracking:ImproperTiering)

125. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated

bythisreference.

126. PursuanttoNEPAandNEPAsimplementingregulations,BLMmusttakeahard

lookatthedirect,indirect,andcumulativeenvironmentalconsequencesofaproposedaction.42

U.S.C.4332(2)(C)(i)(v)40C.F.R.1502.14(a),1502.16,1508.7,1508.8,and1508.14.

127. BLMisrequiredtoprovideahardlookanalysisoftheseimpactsbeforethereare

anyirreversibleandirretrievablecommitmentsofresourceswhichwouldbeinvolvedinthe

proposedactionshoulditbeimplemented.42U.S.C.4332(2)(C)(v)seealso40C.F.R.

1501.2,1502.5(a).

128. DirectandindirectimpactsoffrackingtheMancosShaleincludebutarenot

PAGE37of46

limitedtoimpactsfromhorizontaldrillingtechnologyandfrommultistagehydraulicfracturing

thatBLMneitheranticipatednoranalyzedinthe2003RMP/EIS.

129. CumulativeimpactsfromcurrentandforeseeablefrackingintheMancosShale

includethecombinedimpactofoilandgasdevelopmentwithotherpast,presentandreasonably

foreseeabledevelopmentinthearea,includingbutnotlimitedtothecumulativeimpactsof

greenhousegaspollutiontotheatmosphereonthecommunitiesandlandscapesofNewMexico

andtheAmericanWestfromsurroundingoilandgasactivities,aswellasothergreenhousegas

emissionsources,suchascoalminesandcoalfiredpowerplantscumulativeimpactstoair

qualityfromtheemissionofcriteriapollutantscumulativeimpactstosurfaceandgroundwater

resourcesandwaterquantitycumulativeimpactstohumanhealthandcumulativeimpactsto

culturalpropertieslistedontheNationalRegisterofHistoricPlacessuchasChacoCulture

NationalHistoricalPark.

130. WhenBLMapprovedtheAPDsforMancosShalefrackingatissuehere,itdid

notconductanyanalysisoffrackingsimpactsontheenvironment.Instead,BLMpurportedto

tiertoananalysisofenvironmentalimpactsfromconventionaloilandgasdevelopmentinthe

2003RMPEIS.

131. BLMsattemptstotiertothe2003EISwerearbitraryandcapriciousbecausethat

EISneveranalyzedtheimpactsoffrackingintheMancosShale.BLMhasdonenoanalysisof

environmentalimpactsfromthisextractiontechnologybeingcurrentlyemployedintheMancos

Shale.

132. BLMsapprovalsofAPDswhilefailingtotakeahardlookortoanalyzefullythe

direct,indirect,andcumulativeenvironmentalimpactsofMancosShalefrackingwerearbitrary,

PAGE38of46

capricious,anabuseofdiscretion,inexcessofstatutoryauthorityandlimitations,shortof

statutoryright,andnotinaccordancewiththelawandproceduresrequiredbylaw.5U.S.C.

706(2)(A),(C),(D).

133. BLMspatternandpracticeofapprovingAPDswhilefailingtotakeahardlook

ortoanalyzefullythedirect,indirect,andcumulativeenvironmentalimpactsofMancosShale

frackingwasarbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthorityand

limitations,shortofstatutoryright,andnotinaccordancewiththelawandproceduresrequired

bylaw.5U.S.C.706(2)(A),(C),(D).

SECONDCLAIMFORRELIEF(ViolationofNEPAFailuretoPrepareanEISorSupplementExistingEIS)

134. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated

bythisreference.

135. NEPAobligatesfederalagenciestoprepareanEISformajorfederalactions

significantlyaffectingthequalityofthehumanenvironment.42U.S.C.4332(2)(C).

136. AnagencymayfirstprepareanEA:(1)toprovideevidenceandanalysisthat

establishwhetherornotanEISoraFONSIshouldbeprepared(2)tohelpitcomplywithNEPA

whennoEISisnecessaryand(3)tofacilitatepreparationofanEISwhenoneisnecessary.40

C.F.R.1508.9.

137. Iftherearesubstantialquestionswhetheraproposedactionmaysignificantly

impacttheenvironment,theagencymustprepareanEIS.

138. Whetherornotaproposedactionsignificantlyimpactstheenvironmentis

determinedbyconsideringcontextandintensity.40C.F.R.1508.27.

139. BLMsapprovalofatleast130APDsforfrackingintheMancosShaleisandwill

PAGE39of46

continuetosignificantlyimpactairandwaterquality,humanhealth,climateandcultural

resourcesintheregion.NEPAthereforerequiresBLMtoprepareanEISevaluatingtheimpacts

offrackingoperationsintheMancosShalebeforeapprovinganyAPDsusingthistechnology.

140. CEQregulationsprovidethateveryagencyshallpreparesupplementsto

environmentalimpactstatementsiftherearesignificantnewcircumstancesorinformation

relevanttoenvironmentalconcernsandbearingontheproposedactionoritsimpacts.40C.F.R.

1502.9(c)(1)(ii).

141. BLMsFederalRegisterNoticefortheMancosShaleRMP/EIS,79Fed.Reg.

10,548(Feb.25,2014),recognizes:Asfullfielddevelopmentoccurs,especiallyintheshaleoil

play,additionalimpactsmayoccurthatpreviouslywerenotanticipatedinthe[2001]RFDor

analyzedinthecurrent2003RMP/EIS,whichwillrequireanEISlevelplanamendmentand

revisionoftheRFDforcompleteanalysisoftheMancosShale/GallupFormation.

142. ThisrecognitionisevidencethatBLMsapprovalsofatleast130newAPDs

targetingMancosShalewerenotcoveredbythe2003RMP/EIS.Thus,theseapprovalsrepresent

significantnewinformationrelevanttoenvironmentalconcerns,aswellasasubstantialchange

inimplementationofthe2003RMP/EISforalloilandgasdevelopmenttargetingMancosShale.

NEPAthereforerequiresBLMtoprepareasupplementalEISevaluatingtheimpactsoffracking

intheMancosShale.

143. BLMsEAspreparedforindividualMancosShaleAPDsfailtocurethedeficient

analysisofsuchadditionalimpactswhichwerenotanticipatedoranalyzedinthe2003

RMP/EIS.

144. BLMhasapprovedatleast130APDsforfrackingintheMancosShalewithout

PAGE40of46

supplementationofthe2003RMP/EIS,andwithoutcompletionoftheMancosRMPA/EIS.

145. BLMviolatedNEPAbyfailingtoprepareanEISorsupplementalEISbefore

approvingatleast130APDsforhydraulicfracturingoperationsintheMancosShale.The

agencysfailurewasarbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthority

andlimitations,shortofstatutoryright,andnotinaccordancewiththelawandprocedures

requiredbylaw.5U.S.C.706(2)(A),(C),(D).

THIRDCLAIMFORRELIEF(ViolationofNEPATakingActionDuringtheNEPAProcess)

146. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated

bythisreference.

147. NEPArequiresallFederalagenciestoconsidertheeffectsoftheiractionsonthe

environmentthroughcompliancewithitsprocedures.NEPArequiresFederalagenciestoinsure

thatenvironmentalinformationisavailabletopublicofficialsandcitizensbeforedecisionsare

madeandactionsaretakenandtohelppublicofficialsmakedecisionsthatarebasedon[an]

understandingofenvironmentalconsequences,andtakeactionsthatprotect,restore,andenhance

theenvironment.40C.F.R.1500.1(b)(c)(emphasisadded).

148. NEPAprovides:Whileworkonarequiredprogramenvironmentalimpact

statementisinprogressandtheactionisnotcoveredbyanexistingprogramstatement,agencies

shallnotundertakeintheinterimanymajorFederalactioncoveredbytheprogramwhichmay

significantlyaffectthequalityofthehumanenvironmentunlessthataction:(1)isjustified

independentlyoftheprogram(2)isitselfaccompaniedbyanadequateenvironmentalimpact

statementand(3)willnotprejudicetheultimatedecisionontheprogram.Interimaction

prejudicestheultimatedecisionontheprogramwhenittendstodeterminesubsequent

PAGE41of46

developmentorlimitalternatives.40C.F.R.1506.1(c)(1)(3).

149. BLMisintheprocessofpreparingaResourceManagementPlanAmendment

andEIStoconsiderdevelopmentoftheMancosShale/Gallupformations.BLMhasstated:

additionalimpactsmayoccurthatpreviouslywerenotanticipatedinthe[2001]RFDor

analyzedinthecurrent2003RMP/EIS,whichwillrequireanEISlevelplanamendmentand

revisionoftheRFDforcompleteanalysisoftheMancosShale/GallupFormation.

150. BLMhasapprovedatleast130APDsforfrackingintheMancosShalewithout

havingcompletedanEIS.Theseactionswillimpermissiblyprejudicethedecisionmaking

processandlimitthechoiceofalternativesinthependingMancosRMPA/EISdevelopment

process.

151. BLMsAPDapprovalsthatprejudicetheMancosRMPA/EISandlimitthechoice

ofalternativeswerearbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthority

andlimitations,shortofstatutoryright,andnotinaccordancewiththelawandprocedures

requiredbylaw.5U.S.C.706(2)(A),(C),(D).

FOURTHCLAIMFORRELIEF(ViolationofNEPAFailuretoInvolvethePublic)

152. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated

bythisreference.

153. NEPAregulationsdirectthatBLMshouldencourageandfacilitatepublic

involvement.40C.F.R.1500.2(d).

154. BLMisfurtherrequiredtoinvolvethepublictotheextentpracticableandto

[m]akediligenteffortstoinvolvethepublicinpreparingandimplementingtheirNEPA

procedures,includingthepreparationofEnvironmentalAssessments.40C.F.R.1501.4(b),

PAGE42of46

1506.6.BLMmustnotifythepublicoftheavailabilityofanenvironmentalassessment

andanyassociatedfindingofnosignificantimpactoncetheyhavebeencompleted.43

C.F.R.46.305.

155. NEPAproceduresmustensurethatenvironmentalinformationisavailableto

publicofficialsandcitizensbeforedecisionsaremadeandbeforeactionsaretaken.40C.F.R.

1500.1.NEPAsimplementingregulationsprovidepublicinvolvementrequirements.40C.F.R.

1506.6.

156. BLMviolatedNEPAregulationswhichrequirethataFONSIshallbemade

availabletotheaffectedpublicandthatthepublicandotheraffectedagenciesshallbe

involvedintheNEPAprocess.40C.F.R.1501.4(e)(1)1506.6.

157. BLMhasfailedtomakeNEPAdocumentsandinformationregardingdrillingand

developmenttargetingMancosShaleincludingAPDs,EAs,FONSIsavailabletothepublic

througheithertheFarmingtonFieldOfficeReadingRoomoronline.BLMsactionswere

arbitrary,capricious,anabuseofdiscretion,inexcessofstatutoryauthorityandlimitations,short

ofstatutoryright,andnotinaccordancewiththelawandproceduresrequiredbylaw.5U.S.C.

706(2)(A),(C),(D).

158. BLMsactionswerealsoarbitrary,capricious,anabuseofdiscretion,inexcessof

statutoryauthorityandlimitations,shortofstatutoryright,andnotinaccordancewiththelaw

andproceduresrequiredbylawbecausetheyevidenceapatternandpracticeoffailingtoprovide

anyopportunityformeaningfulpublicinvolvementintheagencysapprovalsofAPDsfor

Mancosshaledevelopment.5U.S.C.706(2)(A).

FIFTHCLAIMFORRELIEF(ViolationofNHPAFailuretoCommenceandCompleteaSection106

PAGE43of46

Consultation)

159. Theallegationsmadeinallprecedingparagraphsarereallegedandincorporated

bythisreference.

160. AllofBLMsMancosShaleAPDapprovalsconstituteundertakingsunderthe

NHPAthathavethepotentialtoadverselyaffectlandscapelevelhistoricandculturalproperties

suchasChacoCulturalNationalHistoricalPark,affiliatedChacoGreatHousesites,andancient

ceremonialroads.Therefore,BLMisrequiredtoconsultwiththeNewMexicoSHPO,Indian

Tribes,andthepublicabouttheextenttowhichMancosShalefrackingresultingfromtheAPDs

challengedhereinadverselyaffecthistoricandculturalsitesandcompromisethecharacteristics

thatmakethesepropertieseligibleforandlistedontheNationalRegisterofHistoricPlaces.

161. PriortoapprovinganyoftheAPDsatissueinthislawsuit,thereisnorecord

showingthatBLMconsultedwithIndianTribes,theNewMexicoSHPO,orthepublicregarding

potentialadverseeffectstolandscapelevelhistoricandculturalpropertiesfromMancosShale

fracking,orassessedsucheffects.

162. BecausefrackingintheMancosShaleisandhasbeensubjecttounusualpublic

attentionandhasinvolvedstronglyopposingviewpointsaboutfrackingsimpactstohistoricand

culturalproperties,BLMcannotuseoftheProtocolAgreementwiththeNewMexicoSHPOto

meetBLMsSection106complianceobligations.BLMwasrequiredtofollowtheSubpartB

regulationsforNHPASection106consultationforalloftheAPDapprovalschallengedherein.

163. BLMsfailuretoconsultwiththeNewMexicoSHPO,IndianTribes,and

interestedmembersofthepublicorassessadverseeffectstoidentifiedhistoricpropertiespriorto

approvingatleast130APDsforfrackingintheMancosShaleviolatedtheNHPAandits

PAGE44of46

implementingregulationsandwasarbitrary,capricious,andcontrarytolawinviolationofthe

APA,5U.S.C.706(2)(A).

RELIEFREQUESTED

WHEREFORE,PlaintiffCitizenGroupsrespectfullyrequestthatthisCourt:

A. DeclarethatBLMsapprovalsofallAPDsallowinghorizontaldrillingand

hydraulicfracturingintheMancosShaletodateviolateNEPAandtheNHPA

B. VacateBLMsapprovalsofallAPDsapprovinghorizontaldrillingandhydraulic

fracturingintheMancosShaletodate

C. EnjoinallfuturehorizontaldrillingorhydraulicfracturingintheMancosShale

previouslyapprovedbyBLM,pendingfullcompliancewithNEPAandtheNHPA

D. EnjoinBLMfromapprovinganyAPDsthatpermithorizontaldrillingor

hydraulicfracturingintheMancosShaleformationpendingfullcompliancewithNEPAandthe

NHPA

F. RetaincontinuingjurisdictionofthismatteruntilBLMfullyremediesthe

violationsoflawcomplainedofherein

G. AwardtheCitizenGroupstheirfees,costs,andotherexpensesasprovidedby

applicablelaw

H. ProvideanyfurtherreliefthattheCourtviewsasjustandequitable.

Respectfullysubmittedthis11thdayofMarch2015,

/s/KyleJ.Tisdel _______________KyleJ.Tisdeltisdel@westernlaw.org

WESTERNENVIRONMENTALLAWCENTER 208PaseodelPuebloSur,Suite602

PAGE45of46

Taos,NewMexico87571(p)575.613.8050(f)575.751.1775

CounselforPlaintiffs

/s/SamanthaRuscavageBarz___________SamanthaRuscavageBarzsruscavagebarz@wildearthguardians.org

WILDEARTHGUARDIANS516AltoStreetSantaFe,NM87501(p)505.401.4180(f)505.213.1895

CounselforPlaintiffWildEarthGuardians

APPENDIX1.FinalAgencyActionsChallengedHerein

2013

DOIBLMNMF01020130012EADOIBLMNMF01020130081EADOIBLMNMF01020130103EADOIBLMNMF01020130105EADOIBLMNMF01020130115EADOIBLMNMF01020130225EADOIBLMNMF01020130288EADOIBLMNMF01020130324EADOIBLMNMF01020130391EADOIBLMNMF01020130393EADOIBLMNMF01020130358EADOIBLMNMF01020130414EADOIBLMNMF01020130531EADOIBLMNMF01020130535EA

2014

DOIBLMNMF01020140004EADOIBLMNMF01020140005EADOIBLMNMF01020140006EA

PAGE46of46

DOIBLMNMF01020140008EADOIBLMNMF01020140009EADOIBLMNMF01020140029EADOIBLMNMF01020140039EADOIBLMNMF01020140047EADOIBLMNMF01020140049EADOIBLMNMF01020140057EADOIBLMNMF01020140080EADOIBLMNMF01020140087EADOIBLMNMF01020140088EADOIBLMNMF01020140101EADOIBLMNMF01020140107EADOIBLMNMF01020140114EADOIBLMNMF01020140117EADOIBLMNMF01020140120EADOIBLMNMF01020140122EADOIBLMNMF01020140145EADOIBLMNMF01020140148EADOIBLMNMF01020140162EADOIBLMNMF01020140175EADOIBLMNMF01020140180EADOIBLMNMF01020140191EADOIBLMNMF01020140217EADOIBLMNMF01020140224EADOIBLMNMF01020140246EADOIBLMNMF01020140250EADOIBLMNMF01020140262EADOIBLMNMF01020140274EADOIBLMNMF01020140292EADOIBLMNMF01020140294EA

2015

DOIBLMNMF01020150007EADOIBLMNMF01020150015EADOIBLMNMF01020150028EADOIBLMNMF01020150036EADOIBLMNMF01020150045EADOIBLMNMF01020150057EADOIBLMNMF01020150066EA